Bill C-317

National Strategy on Flood and Drought Forecasting Act

An Act to establish a national strategy respecting flood and drought forecasting

This enactment provides for the development of a national strategy to provide key stakeholders with the information they need to forecast floods and droughts.

National Strategy on Flood and Drought Forecasting Act

[Peter Julian, NDP, New Westminster—Burnaby, BC]

Mr. Speaker, I would like to begin by saying that the NDP supports this bill. Looking at the climate crisis and the consequences it is increasingly having on the ground, this is a no-brainer for us. It is important to have a broader scope when it comes to adapting to climate change, as well as more resources and better emergency preparedness planning for high-risk areas.

We have seen this happen in British Columbia, perhaps even more than in the other provinces. We need only look at what happened a few years ago with the heat dome that killed 600 people in the greater Vancouver area. Some 60 people in my riding died as a result of the intense heat, which wreaked havoc in my entire region. That was something we had never seen in the entire history of our province and in the entire history of our country.

Because of the dome, which remained in place for a few days, the entire emergency preparedness team of responders was overwhelmed. Paramedics could not respond to all of the emergency calls they received. In apartments with inadequate ventilation, people, often seniors, died a few hours after their apartment turned into a sauna. Firefighters in New Westminster—Burnaby tried to help the paramedics and hospital workers. I will always remember what the paramedics, firefighters and police officers told me: If the heat dome had lasted a mere 24 hours longer, we would have lost far more than the 600 people who died. We were faced with the complete breakdown of our emergency system.

The reality is that climate change and its effects are having an increasing impact. We know that. I mentioned the heat dome but, that same year, and last year as well, we experienced atmospheric rivers that isolated British Columbia from the rest of the country. These weather events cut off all roads and railways between British Columbia and the rest of Canada for quite some time. People had to go through the United States to get to eastern Canada from Canada’s west coast.

We are also increasingly seeing damage caused by strong winds, and we will have to create a new hurricane category, category 6, because the existing categories are inadequate to reflect the force of the hurricanes we are seeing now. I had the sad experience of visiting New Orleans after Hurricane Katrina, in which 1,800 people died. I saw neighbourhoods that are still in tatters, even years later.

Given the situation, we will have to change things. This bill is a step in the right direction, but Canada needs to do much more. On this side of the House, in the NDP, we can see that this has to be made a priority. I want to note that the first motion moved by the NDP during this Parliament was Motion No. 1, the green new deal, which points to the importance of starting to invest in clean energy and, of course, in promoting public safety, ensuring that we are able to adapt to climate change, and, more importantly, ensuring that we are winning this battle against climate change.

To us in the NDP, this is absolutely a priority. We see how the Liberals have been dragging their feet for years. They should be doing much more. They keep giving money to the CEOs of oil companies instead of investing in fighting climate change.

Of course, the Conservatives deny that climate change even exists. It makes me sad to see that they are not prepared to bring in the necessary measures.

We have lived in British Columbia with the heat dome that killed 600 people across our region. Emergency services were on the verge of collapse; what we heard from firefighters and ambulance technicians, as people literally died in the saunas their apartments became, is that if that crisis had lasted another 24 or 48 hours, we would have seen a collapse of our emergency services.

This is why it is so important to reinforce public safety initiatives to ensure that we can respond to the incredible gravity of incidents of climate change and storms from climate change, all of which have such a dramatic impact. British Columbia has lived through two atmospheric rivers that have cut off British Columbia from the rest of Canada. Roads and railway beds were washed away. There was loss of life that came with that.

We have also seen that discussions of hurricanes and strong winds need to move to a whole new category. There are storms we have never seen in the history of humanity. Now, category 6 storms are increasingly occurring. According to newspaper articles, there were at least five that went beyond category 5, which used to be the most severe hurricanes, to category 6.

This is why the NDP tabled, as the first piece of legislation before this Parliament, Motion No. 1, the green new deal, where what we would do is go beyond the well-intended private member's bill before us, which we support, to a whole range of government actions, including cutting off the massive subsidies that go to oil and gas CEOs. We need to make sure we are actually putting into place measures that would help our clean energy economy, and that means hundreds of thousands of jobs. Particularly in areas like Alberta and Saskatchewan, where there are clean energy workers, clean energy investments are going to make a huge difference to the local economy, yet the government has refused to act beyond putting in place a few well-intended measures. The Conservative Party simply denies climate change.

What we need is a government that steps up, understands the important impacts of climate change and is willing to make the investments to help save this planet. We have seen first-hand in British Columbia, in my riding, 60 deaths after the heat dome in New Westminster—Burnaby and how the impacts of climate change are increasing year to year. What we need to do as parliamentarians is stand together, go beyond the bill before us and put in place measures that would fight climate change like it is a battle that we mean to win. The wonderful thing is that by making those investments in clean energy, Canada can become a clean energy powerhouse. It is vitally important that we do this.

The mitigation measures and the public safety measures are important, but what is most important is that we treat climate change with the severity that it has, as an impact right across this country. In agricultural regions, in our cities, in our towns and in northern Canada, we are seeing first-hand the impacts of climate change. We need to leave a better planet to our children and our children's children, and the only way to do that is by a more comprehensive approach on climate change. That is why the NDP tabled the green new deal, and that is why we will continue to push for measures that would fight climate change in a meaningful way.

[Peter Schiefke, Liberal, Vaudreuil—Soulanges, QC]

Mr. Speaker, as always, it is an honour to rise in the House to speak to a bill, this time, Bill C-317, which directly affects my community of Vaudreuil—Soulanges. As everyone is well aware, historic floods affected thousands of my constituents in 2017 and 2019, forcing people out of their homes. Dozens of homes were destroyed in Vaudreuil—Soulanges.

The situation was so sad and so serious that the Quebec government was forced to declare a state of emergency in my community. The Canadian Armed Forces were called in to help us evacuate people from their homes and to fill sandbags. Together with the mayors and elected officials in my region, I helped arrange for thousands of volunteers to come to the aid of disaster victims by filling sandbags. My colleagues from Pierrefonds—Dollard and Lac-Saint-Louis came to help us fill sandbags. The member for Lac-Saint-Louis was actually the one who introduced Bill C-317 in the House. The Prime Minister of Canada even brought his kids to help us fill hundreds of sandbags.

These events clearly demonstrated that climate change is real and that it will continue to have a major impact in our communities, in my community and communities across the country. That is why I fully support the bill introduced by my hon. colleague from Lac-Saint-Louis, which would create a national strategy respecting flood and drought forecasting.

In 2017 and 2019, my community experienced two historic floods. They called them “once in a century” floods. However, we had two of them in three years.

The impact on my community was significant and cannot be understated. Hundreds of homes were flooded, and hundreds of my constituents, including families with children, parents and grandparents, were forced from their homes. The Canadian Armed Forces had to be called in to help evacuate people from their homes, which were literally washed away in the river. They had to come and help fill thousands of sandbags to help protect the homes from the rising water.

These were people's lives, and all of us, as elected officials, seemed helpless. What could we do against the rising waters? We did our best. We woke up every morning and had conference calls.

The reeve of the RCM, Patrick Bousez, the mayors, councillors and myself all worked together to better address the needs of people in our communities, but it was difficult.

I remember being there with one of my constituents, Ms. Joy, who lived in Terrasse-Vaudreuil. We showed up to help place sandbags around some of the homes. Her home had already been taken care of. She and her family and friends had built a five-foot-high wall of sandbags. She had an island of dryness in a sea of rising water. As we were filling those sandbags and placing them around other homes, we heard a scream; when we turned around, we understood why. One of the retaining walls that she had built was giving way; in a 30-second period of time, we watched her house be completely destroyed by the water. We did our best; we ran over to try to put those sandbags back, but we could not do anything against the force of the rising and raging water.

Therefore, it is easy for me to support this piece of legislation, put forward by my friend and colleague for Lac-Saint-Louis, which looks to develop and put in place a national strategy to better predict and forecast droughts and floods. This is a no-brainer for my community, and when I look around this room, I hope that all colleagues will see it as a no-brainer. This is something that would truly and tangibly serve Canadians all across the country. It would help people in a community like mine, which has been impacted by record floods, or one in British Columbia that has seen wildfires develop in record numbers and destroy thousands of homes because of record drought. It would help people in Atlantic Canada, who are seeing record storms, and so forth, go through their communities, or people in the Northwest Territories, who are seeing record wildfires destroy communities in a way that has never been seen before.

This bill is in addition to the work that we are already doing to fight against climate change. We are investing to reduce our greenhouse gas emissions. We are making historic investments in making the transition toward a more sustainable transportation system and a more sustainable economy, which will help reduce our emissions and achieve net-zero by 2050.

There is, however, an additional aspect to our work to fight against climate change. We have to make sure that our cities, municipalities and communities are better equipped to know what is coming and be better informed about drought and flooding forecasts.

I remember waking up every single morning and having a conference call with all the elected officials in my region. All the decisions we made were based on the information that we were getting from Environment Canada and the forecasts from the Government of Quebec. We needed more information to make better decisions. That came to light very poignantly when the Trans-Canada Highway started to flood right before the Île-aux-Tourtes bridge in my community. This bridge sees 90,000 cars and trucks a day pass over it. That was not included in the provisions that we saw and the predictions that had been given to us by Environment Canada, the Government of Quebec and all their resources. It did not happen, thankfully. We did not have to shut down the Trans-Canada Highway, but we were within six to 10 feet of doing so.

I wholeheartedly support this piece of legislation. I hope that all members of the House will do so. I think it will do great things to help better equip members of Parliament and our elected officials at the provincial and municipal levels to better respond to the needs of our communities and make sure that we can do better at keeping them safe. That is one of our primary responsibilities here in this House.

I look forward to voting in favour of Bill C-317 when the time comes.

[Dan Mazier, Conservative, Dauphin—Swan River—Neepawa, MB]

Mr. Speaker, it is an honour to speak to Bill C-317, an act to establish a national strategy respecting flood and drought forecasting.

I want to thank the member for Lac-Saint-Louis for introducing this legislation and advancing the important discussions on water management in Canada. The member for Lac-Saint-Louis and I share a passion for water, and it has been a pleasure to work with him as the chair of the Standing Committee on Environment and Sustainable Development, as we are currently studying water. This is important because, over the last eight years, the government has neglected the subject of water in its environmental policy. As a lifelong farmer and a proud defender of the rural way of life, I can say that no environmental aspect is more important to me than water is. There is an old saying that whiskey is for drinking and water is for fighting over. That statement is a testament to the importance of these discussions.

I am a proud Manitoban, and I can confidently say that Manitoba has the most robust history of adaptation in Canada when it comes to excess water. This comes not out of choice, but out of necessity. Manitobans live on what was once Lake Agassiz. It is well known that the city of Winnipeg is located directly on a flood plain, where the Red River and Assiniboine River meet. No one expected the city of Winnipeg to relocate because of its location. Instead, adaptation and mitigation were prioritized. In the mid-1900s, the majority of Manitobans lived in the Red River Valley, with many residents residing directly on its flood plain. In 1950, the province was unprepared for a historic flood that displaced tens of thousands of Manitobans and damaged infrastructure throughout the province.

A great Conservative premier of Manitoba, Premier Duff Roblin, understood flood plains and the impacts flooding would continue to have if not addressed. Following the historic flood of 1950 and the subsequent royal commission, Premier Roblin was responsible for developing one of the most successful environmental mitigation projects in Canadian history: the Red River Floodway.

The Red River Floodway diverts water flowing from the Red River around the city of Winnipeg. Not only has it prevented more than $40 billion in flood damage to Winnipeg, but the project was also completed on time and under budget, a rare feat for governments today. The Red River Floodway was a monumental undertaking that led to the creation of the Portage Diversion and the Shellmouth Dam and reservoir.

This big-picture thinking enabled governments to successfully plan for consequences hundreds of kilometres away from Winnipeg. This project was responsible not only for flood mitigation but also for drought adaptation, because of its water storage component. These projects are a true testament to what effective and practical environmental policy should look like.

In a nation as large and diverse as Canada, mitigation and adaptation should be a focus of environmental policy. It is important to note that Bill C-317 would not directly build water mitigation and adaptation projects such as the ones I mentioned, because Bill C-317 is only a strategy. We need to seek tangible and practical solutions. I hope that, if passed, Bill C-317 would not result in more bureaucrats and consultants and, instead, would advance solutions to the water challenges Canada faces.

In 2011, Manitoba was once again caught off guard; it experienced another historic flood. Local governments were forced to flood parts of their own communities to prevent worse damages in different water basins. I remember the 20-foot walls of sandbags in the city of Brandon. The community was anxiously monitoring the forecasts as it prayed for the dikes to hold.

Unfortunately, many of the lessons from dramatic flooding events are not learned until after the damage is done. Too often, all levels of government fail to focus on proactive and preventative flood management. Failing to plan is planning to fail. As a result, the citizens bear the economic and social costs. That is why it is important to be proactive in flood forecasting; in this way, communities can prepare for the most likely scenarios and mitigate the potential damages.

There were many lessons learned from Manitoba's 2011 flood. One of the most significant lessons highlighted was the importance of collecting standardized data for flood forecasting. Following the flood, it became very evident that there was a lot of data available regarding water and flood plains. Municipal, provincial and federal governments; water basin organizations; and farmers and landowners had their own data. However, all this data was gathered by different people, in different ways and with different formats.

Water knows no boundaries, so it is critically important that different water authorities are able to share standardized data so they can communicate with each other. Any national strategy must enable all jurisdictions to share data in a standardized and understandable format to prepare for and react to flooding.

Any national strategy on water must also respect jurisdiction, which has been absent under the current government. The standardization of data is common sense and has the potential to save taxpayers’ money because it can reduce the administration needed to translate this information. When we have more accurate data, it allows us to model the impacts of government policies more effectively.

Aquanty specializes in the predictive analytics, simulation and forecasting of water resources. It is an amazing model than can forecast if it has enough accurate data points. It can analyze the impact of precipitation, including how much can be absorbed by the soil at various distances downstream. The model needs a lot of accurate data to make these projections accurately, and this requires standardization and data sharing from local governments. Data is so important because too often bureaucrats pretend to know the lay of the land better than those who work and live on the land.

I know the sponsor of this bill understands the importance of local engagement, but too often the intent of legislation like this is ignored by bureaucrats far removed from the people. No one is better equipped to provide accurate information on water than the individuals who live and work on the landscape.

Unfortunately, there are countless examples of government officials not listening to the people on the ground. I know many farmers who have dealt with government during times of flooding on their land, and it is all too common to hear about a bureaucrat advising a farmer where they expect water will move and the farmer advising the bureaucrat where the water will actually move. When the water begins to move, it is the farmer who has been farming the land his entire life who is right, not the bureaucrat from some downtown office building.

While Bill C-317 would mandate collaboration and consultation with various levels of government, I do fear much of the consultation would neglect the people who understand the landscape the best. Hopefully we can examine how to best include the knowledge of landowners in the proposed national strategy at the Standing Committee on Environment and Sustainable Development.

In conclusion, Bill C-317 has the potential to make a positive difference to the future of flood and drought management in Canada. Unfortunately, we will not be able to fully understand what will be in the strategy or whether the strategy will address the concerns I raised.

If Bill C-317 becomes law, I am hopeful any national strategy on this matter can be built from the ground up and not from a top-down approach in Ottawa. Water has not been given the attention it deserves for too long, so I am thankful Bill C-317 has enabled Parliament to discuss an issue that is so important to Canadians.

As I said in my opening remarks, whiskey is for drinking and water is for fighting over. I look forward to continuing to fight over water in a productive way so Canadians are better off.

[Sylvie Bérubé, Bloc, Abitibi—Baie-James—Nunavik—Eeyou, QC]

Mr. Speaker, I appreciate the opportunity to rise today to speak in this session of Parliament. I want to begin by saying hello to the people of Abitibi—Baie-James—Nunavik—Eeyou and to my team, Line, Mélanie, Marie‑Josée, Jenny, Lamine, Eric and Loukas, who are holding down the fort in my riding.

Let us now talk about Bill C-317, an act to establish a national strategy respecting flood and drought forecasting, which seeks to provide key stakeholders with the information they need to forecast floods and droughts. This bill affects me directly, since much of my riding had to deal with forest fires in 2023.

Year after year, more and more regions of Quebec and Canada are facing flooding and forest-fire-causing droughts because of climate change. Climate change is escalating around the world and causing climate events that are increasingly frequent, more intense and more variable in nature.

Quebec has experienced a lot of flooding in recent decades. The socio-economic costs associated with those floods have only continued to grow. The same is true of forest fires.

The Société de protection des forêts contre le feu describes the 2023 wildfires as the most devastating ever. The drought in May 2023 was the spark that ignited it all. Some 4.5 million hectares of forest burned in Quebec, including 1.1 million hectares in populated areas.

In summer 2023, there were 30 times more wildfires than the annual average, including 48 that burned more than 1,000 hectares, or 30 times more than the annual average in Quebec, which is 1.6 fires per season. Some 2,360 forest firefighters from the rest of Canada and around the world came to help their colleagues in Quebec.

The community of Lebel-sur-Quévillon, in Abitibi-James Bay-Nunavik-Eeyou, was the hardest hit by the wildfires in summer 2023. It had the biggest fire, made up of 19 fires that converged and burned 480,000 hectares of forest. Five years of forest harvests went up in smoke. I was there on the first day of the forest fires in Chapais and when Lebel-sur-Quévillon was evacuated, to announce the evacuation.

For those who do not believe that these fires are a result of climate change, I can enlighten them. I can tell them about the damage they caused in my riding in terms of the economic and social losses, of our people's insecurity and their fear of losing their homes and personal property, of their fear of going through more fires, of the lack of compensation to the cities and towns that were devastated. People are still stressed, and they are still awaiting financial assistance.

I worked with the mayors to help meet the complex needs of cities and towns in this difficult situation. I reported on the situation every day between May and August of last year.

Floods and droughts are natural phenomena that are amplified by climate change. Adjusting to the impacts of climate change means that public authorities need to rely on science to guide government decision-making. This means making relevant information about meteorological events, including droughts and floods, available to the public and all responders.

The Bloc Québécois agrees with the principle of Bill C-317, but someone will have to show how a bill seeking to create a national strategy to prevent floods and droughts will improve current public action, since public authorities are already doing much of the work.

In fact, we would like to take this opportunity to remind our colleagues that Canada is not a national state made up of a single people. There is no one single Canadian nation. Canada is a multinational society, which includes the Canadian majority, the Quebec nation and indigenous nations. The use of terms such as “national policy” or “national strategy” is therefore a bit misleading.

Everyone knows that a country can hold up diversity as a cardinal value while showing very little consideration for the diversity of nations that make up its population. That being said, our main concern about Bill C-317 is its relevance. We are not certain whether the bill’s provisions will have a beneficial effect on public action and, especially, on the ability of public authorities to plan and adapt to the impacts of climate change.

The preamble of Bill C-317 explains that the reason for this new legislation is the fact that “current flood and drought forecasting in Canada is conducted by the provinces without coordination between them and with limited federal technical support”.

It is therefore important to consider public actions already taken by the provinces in order to forecast and prevent floods and droughts and to evaluate to what degree federal support is or is not needed.

Quebec’s plan to protect its territory from floods contains sustainable solutions to protect our living environments. As we can see on the government of Quebec’s website, the plan is based on four areas for action.

Given the seriousness of the situation, the Quebec government has taken action. The ministerial action group on flood-related land-use planning was given a mandate to develop a land-use government plan to ensure the safety of the public and the protection of property in flood zones in Quebec. The action group collaborated with municipalities and the scientific community to find sustainable and creative solutions for protecting our living environments from flooding. Two advisory committees were also set up; one was composed of representatives from the municipalities and associations involved and the other was made up of experts from the various fields associated with land use and flood zone management. After several months of research and consultation, both committees tabled their report. The numerous recommendations they made were taken into consideration by the ministerial action group.

As my colleague mentioned earlier, Quebeckers can also use the Vigilance app to better prepare for flooding by keeping up-to-date on rising water levels in Quebec. Government and municipal stakeholders can also use it to alert and mobilize responders in the event of an emergency.

Generally speaking, we can reasonably say that the Quebec government has the expertise needed to protect the land and the people against flooding. In addition, Quebec put a great deal of thought into the Quebec water strategy, which takes into account all past experience. Quebec's strategy works quite well without intervention by the federal government, whose involvement is not needed to protect the environment and manage natural resources.

So it must be made clear that Quebec already has comprehensive flood prevention and water strategies, and that the strategies do not require federal government intervention. Therefore, in subclause 3(3), which defines the content of the future federal strategy, paragraph (d) will have to be amended to remove an unnecessary reference to a Canadian water agency. The very existence of this agency is just as unnecessary as the reference to it in the bill. It is not needed because of the division of powers provided for in the Constitution of Canada.

In closing, the last thing I want is to relive what happened with the 2023 forest fires in Abitibi—Baie‑James—Nunavik—Eeyou.

[The Speaker, Liberal, Greg Fergus]

The hon. member for Lac-Saint-Louis has five minutes for his right of reply.

[Francis Scarpaleggia, Liberal, Lac-Saint-Louis, QC]

Mr. Speaker, it is a pleasure to be able to close this debate on my bill at second reading. First of all, I would like to say how impressed I was by the quality of the speeches from both sides, by members from all parties present in the House this morning.

I would also like to circle back to the comments made by my colleague, the member for Repentigny at the end of the first hour of debate, as well as the final comments made by the member for Abitibi—Baie-James—Nunavik—Eeyou. What we are aiming for here is not a federal strategy at all. In fact, responsibility for forecasting and adapting to disasters, such as floods and droughts, lies with the provinces.

We are not aiming for a federal strategy, but a national strategy, meaning that we want to use this structural bill to encourage better collaboration between the provinces, the federal government, indigenous communities and, as my colleague from Dauphin—Swan River—Neepawa also mentioned, the people on the ground, the farmers. This is already happening. Specialists meet informally. However, according to Canada's foremost expert on flood and drought forecasting, John Pomeroy, something more formal is needed.

It is important to recognize that technology has evolved. I can confirm that Quebec is one of the most advanced provinces in flood and drought forecasting. Quebeckers are very technologically advanced, but that does not mean we should not encourage collaboration because, in this day and age, with advances in technology and forecasting methods, forecasters are no longer limited to a small territory. Models can now be developed that cover huge, broad territories, even entire continents. That is what is being done in Europe right now. This will require collaboration. The federal government is not interfering. That is not at all what is happening here.

I will give an example of the possibilities that we have with the proper degree of co-operation and the possibilities that we have of doing accurate flood forecasting. I would like to refer to something by Dr. Pomeroy. I am paraphrasing him and, in some cases, I am quoting him directly.

I notice the member for Yukon is here. In the summer of 2021, Yukon experienced historical flooding along the Yukon River in Whitehorse, a pilot case flood forecast for the territorial government. It is a flood forecast coordinated by Global Water Futures, which is out of the University of Saskatchewan. It was able to correctly predict the flood and show its cause, which was unprecedented glacier and snow melt in the high mountain headwaters of the Yukon River in British Columbia.

The problem is that Global Water Future's funding will be sunset, so we will not have the funding necessary for this kind of endeavour, but we need more of these kinds of endeavours. As Dr. Pomeroy has said, this exercise could not have been done by any level of government alone. There had to be co-operation between the federal government, the Yukon government and a university, where the expertise really resides in this area. It is not a question of public servants dictating anything to anybody. The public servants will not be doing this work; it is the experts in the universities and provinces.

I appreciate the quality of the speeches I heard this morning and I appreciate what seems to be all-party support for this bill.

[The Speaker, Liberal, Greg Fergus]

The question is on the motion.

If a member participating in person wishes that the motion be carried or carried on division, or if a member of a recognized party participating in person wishes to request a recorded division, I would invite them to rise and indicate it to the Chair.

[Francis Scarpaleggia, Liberal, Lac-Saint-Louis, QC]

I would like a recorded vote please, Mr. Speaker.

[The Speaker, Liberal, Greg Fergus]

Pursuant to Standing Order 93, the recorded division stands deferred until Wednesday, February 14, at the expiry of the time provided for Oral Questions.